ALCOHOL&DRUGS

PREFACE
T his manual is a revised edition of the ILO publication Drug and Alcohol Prevention
Programmes in the Maritime Industry (A Manual for Planners) originally published in
1996 as part of the project "Development of measures to reduce drug and alcohol
problems in the maritime industry" (AD/GLO/92/603), financed by the United Nations
Drug Control Programme (UNDCP).
The original project resulted from the adoption of the Resolution concerning drugs and
alcohol in the maritime industry by the 26th session of the Joint Maritime Commission of the
ILO in October 1991. This body recognised shipowner and seafarer concerns and the urgent
need for concerted, international, co-ordinated industry action to address the potential
dangers to health and safety of drug and alcohol use and to increase prevention measures
through awareness and education. Since initial publication however, there has been
developments, which has prompted reconsideration of both the content and layout and this
revised manual attempts to take these changes into account.
In 1993 the International Maritime Organization adopted the International Safety

Management (ISM) Code (IMO Resolution A. 741(18)) which "recognised the need for
appropriate organisation of management to enable it to respond to the need of those on
board ships to achieve and maintain high standards of safety and environmental protection".
Further, in November 1995 the nineteenth IMO Assembly adopted ‘Guidelines for the
Implementation of the ISM Code by Administrations’ (Resolution A. 788(19)). The
requirements of these resolutions became mandatory for certain types of ships on 1st July
1998 with the remaining types of ships engaged on international voyages being required to
comply by 1st July 2002.
The implementation of the ISM Code means that, inter alia, ship operators/managers must
have in place a management system that ensures safety and pollution prevention matters
are dealt with systematically and that such a system is clearly documented. The ‘Guidelines
on the Application of the IMO ISM Code, prepared by the International Chamber of Shipping
and International Shipping Federation and recognised by the IMO, specifically recommends
companies have “Alcohol and other drug policies and procedures”. The requirement for ISM
Code certified companies to address the issue of drug and alcohol abuse and prevention
therefore no longer remains an option. Companies required to comply with the ISM Code
requirements by 1st July 2002 will, by that date, also have no option but to determine their
policy on the subject matter. For those companies that have established management
systems, this revised manual may serve as an aid to reviewing the effectiveness of existing
policies and procedures.
In addition to the implementation of the ISM Code many supporting maritime companies
have developed, or implemented and/or are pursuing, for commercial as well as public
liability purposes, ISO 9000 Quality system standard based quality management systems. It
is hoped the contents of this manual can be used to help in developing such systems or
introducing the subject of drug and alcohol abuse prevention into already established
systems.
There is no doubt that the introduction of the ISM Code and adoption of ISO 9000 have
resulted in the development of drug and alcohol abuse prevention programmes and policies,
but these are not the only changes that have occurred in the interim since first publication.
Changes in maritime health and safety policies by the IMO published in STCW’95 and the
ILO/WHO publication of Guidelines for Conducting Pre-sea and Periodic Medical Fitness
Examinations for Seafarers have also had an effect on the contents of this manual. In view
Drug & Alcohol Abuse Prevention Programmes Page iii

PREFACE
of these changes and the replies to an assessment questionnaire distributed to recipients of

the original manual the following revisions have been incorporated into this version:
updated information with regard to policy, regulatory, health
promotion and drug and alcohol abuse prevention
programme developments;
an expanded educational information section; and
new support, reference and bibliographic materials.
The objective of this manual is therefore to continue to contribute to the reduction of health
and safety problems related to the use of drugs and alcohol in the maritime industry through
promotion of awareness and education. The manual provides the background and practical
information necessary to develop, implement and evaluate comprehensive programmes to
reduce the potentially harmful and/or hazardous effects of drug and alcohol use and abuse
by maritime personnel.
The manual stresses prevention, that is, taking action before health or safety problems
relating to alcohol or drug use develop and the responsibilities of the various parties
involved. It identifies the prevention role as part of the responsibilities and on-going duties of
owners, management, masters and ship’s officers. The manual also contains information
intended to assist companies in developing programmes to help employees, including
seafarers, with a drug or alcohol problem.
Page iv Drug & Alcohol Abuse Prevention Programmes

Table of Contents
Page
Preface iii
Section 1
Drugs & Alcohol in the Workplace 1
Section 2
Drugs & Alcohol in the Maritime Industry
Health and Safety 2

Performance & Productivity 3
Legal Liabilities 4
Environmental Concerns 6
Section 3
Responsibilities
Government/Administrations 7
International Organisations and Institutions 9
- IMO 9
- ILO 10
- WHO 10
- UNDCP 11
- International Employer & Workers’ Representative Organisations 11
- NGO’s 11
Maritime Training Institutes 12
Shipowners, Charterers, Ship Managers, Manning Agents, Insurers, Shipping
Communities and Shipping Organisations 13
Ship Masters, Officers and Seafarers 15
Section 4
Comprehensive Substance Abuse Prevention Programme
Introduction 16
Management Support 18
Planning the Programme 19
Work Environment Improvement 20
Drug & Alcohol Abuse Prevention Programmes Page v

Table of Contents
Page
Components of a Prevention Programme

- Preamble 21
- Policy Statement 22
- Policy Awareness 25
- Training Programmes for Management and Senior Ship’s Officers 26
- Problem Identification and Intervention 27
- Crisis Management 28
- Employee Education 29
- Counselling, Treatment and Rehabilitation 31
- Drug and Alcohol Testing 33
- Programme Evaluation 35
Appendix
1. Sample Drug and Alcohol Policies. 37
2. ILO/WHO - Guiding Principles on Drug and Alcohol Testing Procedures. 45
3. WHO - Programme on Substance Abuse – AUDIT, The Alcohol Use Disorders
Identification Test. 49
4. ILO/WHO Guidelines for Conducting Pre-sea and Periodic Medical Fitness
Examinations for Seafarers. 50
5. Effects of Alcohol and Drugs and Indicators of Potential Problems. 51
6. Guidelines For The Control of Drugs And Alcohol Onboard Ship – OCIMF. 53
7. ILO – Management of alcohol- and drug-related issues in the workplace. 54
8. Brochures and Publications. 55
9. Information Sources on Workplace Drug & Alcohol Problems and Programmes. 56
10. Contact Addresses. 57
11. Definitions. 58
12. STCW’95: Part 5 – Guidance on Prevention of Drug and Alcohol Abuse. 61
Page vi Drug & Alcohol Abuse Prevention Programmes

INTRODUCTION
Drugs & Alcohol in the Workplace
T he use of alcohol and/or other drugs in general is increasing globally, and the impact of
substance abuse can be seen in the workplace:
Alcoholism causes 500 million lost workdays each year. 1
It is estimated that 10-30% of the accidents at work are

related to alcohol and that problem drinkers have a 2-4
times higher chance of an accident than non-drinkers (Bijil
and Ziekemeyer, 1990).
The cost of reduced labour productivity for most

industrialised countries has been estimated at several
hundred million dollars annually. Researchers caution that
these estimates should not be considered precise, but
should be interpreted as showing the general order of
magnitude of productivity losses arising from drug and
alcohol problems (Heller and Robinson, 1992).
The management of risk factors including use of alcohol and drugs - illicit, prescriptive and
over-the-counter - is a serious issue that extends beyond physical safety to include decision-
making. Poor judgement in a high-stakes situation could result in substantial damage to
property and the environment, loss of ships, injury to personnel and even death. When
proper judgement is impaired by substance use and key decisions must be made, the risks
increase dramatically.
In a study conducted by the US National Institute on Drug
Abuse (NIDA), subjects who consumed a moderate amount
of alcohol scored significantly poorer on a short test of recall;
the study also found that moderate alcohol consumption
contributed to extreme changes in decision-making
behaviour.2 In another study, NIDA found that marijuana
use impairs driving-related functions and is linked to a
pattern of behaviours that leads to poor job performance.3
The progression of drug and alcohol use may go unnoticed until a health or safety crisis
occurs. However, even the moderate use of drugs or alcohol may cause substantial harm
and hazard irrespective of the workplace and regardless of the type of work being
performed.
1
“Treatment is the Answer: A White Paper on the Cost-Effectiveness of Alcoholism and Drug Dependency Treatment”. National
Association of Treatment Providers, Laguna Hills, CA. March, 1991
2
“Effects of Alcohol on Human Behaviour: Implications for the workplace, Kelly, Foltin and Fischman, The Johns Hopkins
University School of Medicine, U.S. Health and Human Services Department, 1990
3
www.nida.nih.gov/NIDA_Notes/NNVol11N1/Marijuana.htm
Drug & Alcohol Abuse Prevention Programmes Page 1

INTRODUCTION
H ealth and Safety

Seafaring is international in nature and the shipping industry as a whole has become
increasingly conscious of the impact that drug and alcohol use can have on operations.
Special conditions that increase the need for action to limit drug and alcohol use that put
health and safety at risk include:
Variables unique to the

maritime industry include:
ships act as both workplace and home;
maritime population requires geographic mobility;
mixed cultures, customs and languages;
limited social interaction with non-maritime personnel on
board or ashore;
limited health facilities;
long and often irregular working hours;
high variability in ownership and management of ships,
hiring practices and work conditions; and
significant variations in national laws, regulations and
enforcement standards.
The health of seafarers is not only a major concern of seafarers themselves but also a
primary concern of the shipowner/operator/manager. With approximately 80% of maritime
accidents caused by human error,4 sickness and injury benefits represent a growing
proportion of the shipping industry’s third party liability insurance claims.
In 1997, as part of an effort to assist the maritime industry maintain the health of seafarers
and to contain costs, the ILO, in collaboration with the WHO, published “Guidelines for
Conducting Pre-Sea and Periodic Medical Fitness Examinations for Seafarers” which
outlines best practice. As part of an assessment of a seafarer’s fitness for duty, the
physician must assess mental health and “consumption of alcohol and use of psychotropic
drugs, which (may) adversely affect the health of the seafarer or the safety of the ship”. By
Administrations adopting these Guidelines, it is hoped that, drug and alcohol abuse will be
identified at a stage that allows treatment before rather than after an accident has occurred.
Significantly, the inclusion of checks for drug and/or alcohol abuse in medical examinations
confirms the view that drug and alcohol abuse is a medical condition.
4
Sagen, Arne; “Maritime Loss Control Management - Human Aspect” DNV Scholarship Funds, Det Norske Veritas, 1994, p.89.
Page 2 Drug & Alcohol Abuse Prevention Programmes

INTRODUCTION
P erformance & Productivity

The maritime business, in particular ship operation, is highly competitive. Profits are very
often low and in many cases marginal. Shipowner/operator/management decisions are too
often “bottom line” driven. Collisions, explosions, groundings, fires, sinking or capsizing can
be catastrophic for all concerned. Long-term carelessness and neglect, to which substance
abuse may contribute, can result in a steady drop in performance that, over time, may cause
greater financial loss than events of a more dramatic and easily identified nature.
Shipowners/operators and managers cannot therefore afford to ignore any issues that affect
productivity.
Substance abuse undoubtedly contributes to lower performance and productivity. A study

conducted in the US showed that when airline pilots had to perform routine tasks in a
simulator under three alcohol test conditions, the following results were obtained:
1st test: before any alcohol ingestion,

10% could not perform all tasks correctly,
nd
2 test: after reaching a blood alcohol concentration of 0.10/100ml,
89% could not perform all tasks correctly, and
rd
3 test: fourteen hours later, after all alcohol had left their systems,
68% could not perform all tasks correctly.5
There is every reason to believe these findings apply equally to seafarers!
In addition, because virtually all work carried out on a ship has a safety implication, the term
“seafarer” should be applied to all persons working on ships and not just those in executive
positions.
Drug & Alcohol

consumption
Performance
& Productivity
5
Model JG, Mountz JM. Drinking and flying: The problem of alcohol use by pilots. New England Journal of Medicine 1990;323
(7): pp. 455-461.

INTRODUCTION
L egal liabilities
Legal and financial liabilities for the breech of safety and security regulations and procedures
may result in major court cases, lengthy investigations and great expense being incurred.
Legislation with severe penalties, where drugs and alcohol are adjudged to have contributed
to an accident, is being introduced worldwide on an increasing scale. Penalties imposed not
only cover injuries to personnel and damage to property but also the enormous costs
involved in preventing or cleaning-up damage to the environment. Reports from the United
States National Transportation Safety Board quote numerous cases in which alcohol and
other drug use has been a factor in aviation, rail, marine and highway accidents6. Examples
of laws and regulations introduced around the world include:
U.S.A. The United States regulations require surface, air and

marine transport companies to have alcohol and drug
prevention programmes in place for all workers in safety-
sensitive positions.7 The US Coast Guard imposes
restrictions on alcohol and drug usage within US territorial
waters. Regardless of nationality, all foreign surface, air and
marine transportation companies operating within US
boundaries are required to adhere to and enforce the US
policies.
United Kingdom The United Kingdom’s Department of Transport has passed

regulations prohibiting transport workers from working under
the influence of drugs and/or alcohol. These regulations
include “provisions for post-accident and ‘for cause’ testing
of workers, as well as a requirement for employers to
demonstrate due diligence in ensuring that employees are
not under the influence of a drugs or alcohol at work.
Several employers in industries covered by these
regulations have broadened their company programs to
include other types of testing and educational programs”
(DeLancey, M., and Hannan, D., 1994, p.102).
6
"Drugs and Alcohol in the Maritime Industry," Report of the ILO Inter-Regional Meeting of Experts; Geneva, 29 Sept-2 Oct,
1992, p. 22.
7
Drugs and Alcohol in the Maritime Industry," Report of the ILO Inter-Regional Meeting of Experts; Geneva, 29 Sept-2 Oct,
1992, p. 23.

INTRODUCTION
Norway Policies and prevention programmes to control alcohol and

drug abuse in the workplace are also in place in Norway.
The Seaman’s Act of 1975, with subsequent amendments,
covers many aspects relating to the use of alcohol and
drugs by seafarers including the supply of alcohol to persons
under the age of 20 years.8 General provisions concerning
drugs, which also apply to Norwegian ships, cover penalties
related to illegal possession of drugs.
The Merchant Shipping Act of 1995 makes it a criminal

offence for a master to fail to discharge his responsibilities
because of drugs or alcohol, or to take unauthorised liquor
on a fishing vessel.
The Philippines The Standard Employment Contract (SEC),9 sanctioned by

the national government, covering the engagement of
Filipino seafarers for overseas assignment contains a Table
of Offences and Schedule of Penalties with specific
provisions for drug and alcohol abuse.
Liabilities not only extend to conformance with laws and regulations but also to commercial
arrangements, and many charterers now specify drug and alcohol prevention measures in
charter parties. Delays to a ship sailing caused by individuals failing drug and alcohol tests
imposed by some countries (or spot checks by owners/charterers) can be extremely costly to
the owner/operator. Clauses containing references to drug and alcohol abuse are becoming
increasingly the norm rather than the exception due to the requirements for all involved in
the transport chain to operate with all due diligence10.
Regulations such as those indicated above often shape the alcohol and drug programmes in
the maritime sector both at national and international level and thus play an important role in
encouraging the development of substance abuse prevention programmes in other
countries.
8
1992, p. 140.
9
1992, p. 147.
10
Due diligence in this connection is intended to mean the avoidance of all identifiable risks.

INTRODUCTION
E nvironmental concerns
The potential for marine accidents to have a catastrophic impact on the environment has
increased many times over during the past 20 years with numerous accidents serving as
graphic examples of failures to recognise the potential for accidents to occur. Public
concerns about pollution of and damage to the environment increase daily and are fuelled by
press reports of marine casualties involving ship collisions and spillages of oil/chemicals.
Increased public awareness of the effects of pollution has, in recent years, caused the
subject to become a political issue rather than one involving commercial reparations for any
damage caused.
Accidents do not always involve pollution or damage to property. In many cases damage is
sustained by coral reefs or fishing grounds and damage is not always immediately apparent.
Penalties for causing damage to under-water marine eco systems are likely to result in
offending ships being detained as well as the imposition of very significant fines.
Punishments are intended to be penal rather than sums that reflect recovery of costs
incurred since such damage is likely to be irreparable. In most countries with environmental
protection legislation, individuals may also find themselves under arrest and liable to
imprisonment.
Penalties for incursions into the environment are liable to increase as pressure groups and
the general public demands ever improving standards and greater concern for the planet.
The seafarer and ship operators alike must be aware of not only increasing legislation but
also the possible effects on the environment of not being fully able to perform their duties
and the need to be free from any impairment brought about by drug or alcohol abuse.

RESPONSIBILITIES
Government/Administrations
I n any alcohol and drug prevention programme, responsibility for the various tasks and
duties needs to be identified. Administrations, international organisations (IGO’s), non-
governmental organisations (NGO’s), training institutes, shipping communities and
organisations, shipowners/operators, trade unions, managers, manning agencies, masters
and crew members all have a role to play and a responsibility to fulfil. All maritime
companies and organisations are to be encouraged to develop and institute drug and alcohol
abuse prevention programmes as failure to so do could adversely affect the inter-
dependency and relationship that binds such companies and organisations.
The degree of responsibility and involvement of every company and organisation should be
determined according to the potential effects of failing to act11. From the perspective of an
administration, there is a responsibility to provide guidance and support and enabling
legislation. At the other end of the spectrum, ship’s officers and crew have a responsibility to
actively participate in any prevention programme that affects the safety of the ship, their
fellow seafarers and, of course, themselves.
Responsibilities of government commence with formulation, adoption and promulgation of

policies, laws and regulations to protect the health and safety of its citizens and workers,
including seafarers even though they may be employed outside the country by foreign
concerns. Laws and regulations should not only address restrictions and the imposition of
penalties but also provisions for assisting persons deemed to be dependent on drugs and
alcohol through prevention and rehabilitation programmes. An administration’s
responsibilities may be summarised as:
Promoting Prevention: Health checks and medical examinations: ensuring checks

for drug and alcohol abuse are included in the seafarers’
medical examination both on initial screening and during
seafarers’ periodic medical checks.
Training & education: provide the support, guidance and
expertise to assist the development of schemes to prepare
trainers, the application of training and the education of
seafarers and shore workers in the effects, symptoms and
results of drug and alcohol abuse.
Promoting and raising the profile of prevention: co-
ordinate accident reports and provide risk assessment data
and other information that may be used by the country’s
maritime industry to raise the profile of the subject and to
promote the dangers posed by drug and alcohol abuse.
Setting safety limits: prescription of a maximum blood

alcohol level for watchkeepers as a minimum safety standard
and any other prohibitions on the consumption of drugs,
including prescribed medications, or alcohol that can impair
the ability of watchkeeping seafarers or those on board
engaged in safety sensitive operations.
11
“It was strongly noted that national governments have a very important role to play in terms of setting and monitoring
relevant regulations and standards” – Report of the ILO Inter-regional Meting of Experts Geneva, September – October 1992.

RESPONSIBILITIES
Government/Administrations
Provision of rehabilitation services: provide rehabilitation

services for those seafarers diagnosed as having or who have
acknowledged a drug or alcohol abuse problem.
Non-discrimination: develop and introduce legislation that

ensures rehabilitated seafarers, following an individual’s
successful completion of an approved treatment programme,
are not discriminated against by employers.
Declaring drug and alcohol abuse to be a medical

condition: encourage those with drug and alcohol abuse
problems to seek assistance thereby reducing health and
safety risks to fellow seafarers on board ships.
Focal point: to act as a focal point for industry and to

express and share the national views/experiences gained
from prevention programmes at international level.
The above are some of the responsibilities which may be assumed by a country’s health or
welfare ministry through the introduction of domestic legislation or recommendations to
industry. However, there are other areas of responsibility where governments’ need to act in
concert with other agencies and organisations in order to provide a comprehensive drug and
alcohol abuse prevention programme specifically aimed at seafarers due to their special
case status.
The responsibilities of government should go further than national legislation or other

regulations that have been passed and have entered into force as the efficacy of such laws
and regulations can only be measured over a period of time following their introduction.
Research indicates that without continued commitment, monitoring of programmes and
support from government, programmes to prevent drug and alcohol abuse fade and loose
focus. Such loss of focus is likely to cascade downward and result in a softening of
acceptable standards and potential for accidents and injuries to return to previous levels.
The duty of government may therefore be described as guardian and key to on-going
application of drug and alcohol abuse prevention.
Organisations / Personnel with Drug & Alcohol

Abuse Prevention Responsibilities
Administration M anning Seafarers’

– Flag State Agents Trade Unions M aster /
Officers / Crew
Shipowner Charterers Insurers
Ship M anager Training International Trade & Welfare

Institutes Organisations Organisations

RESPONSIBILITIES
International Organisations & Institutions
Inter-Governmental Organisations
International organisations (generally referred to as Inter-Governmental Organisations –
IGO’s) include the International Maritime Organisation (IMO), the International Labour Office
(ILO) and the World Heath Organisation (WHO). Each of these organisations under their
respective charters or constitutions are responsible for promoting and making available
information concerning the health, welfare and safety of seafarers.
As the forum for governments (and other bone fide organisations) to discuss issues which
affect workers in all countries, such organisations are also the forum where minimum
standards are determined and agreed by convening States. Usually agreements take the
form of international instruments issued as Conventions (binding) or Recommendations
(non-binding), Treaties (binding) and Agreements (non-binding).
In addition to the work carried out by these organisations, they are responsible for producing
publications that can be used to support a drug and alcohol abuse prevention programme.
While information and data may be obtained in hard copy, some may also be obtained via
the respective web site (see Appendix 9 & 10).
The following brief descriptions are intended to demonstrate that international organisations
are obligated and have a responsibility to promote health and safety and that they are a
valuable source of information that can be used in development of a drug and alcohol abuse
prevention programme.
International Maritime Organisation

The International Maritime Organisation (IMO) is a United Nations organ
that is primarily tasked with development of maritime safety treaties,
conventions, recommendations and guidance in respect of ship
operation and measures for the protection of the marine environment.
In regard to prevention of drug and alcohol abuse12, guidance is contained in the STCW
Code (Section B-VIII/2 Part 5, paragraphs 34-36). In setting out the requirements for
seafarers and Administrations, it should be recalled that, by ratification of the International
Convention on Standards of Training, Certification and Watchkeeping for Seafarers, 1978,
as amended in 1995, Administrations have by definition already agreed to implement the
requirements. For the purpose of convenience, STCW’95, Part 5 – Guidance on Prevention
of Drug and Alcohol Abuse is contained as Appendix 12.
From the above it should be clear that the IMO has exercised its responsibility in regard to
drug and alcohol abuse prevention measures covering watchkeepers, setting maximum
standards and addressing the issue of prevention.
12
See MSC/Circ.595 – Principles and Guidelines Concerning Drug and Alcohol Abuse Programmes and MSC/Circ.634 – Drug
and Alcohol Abuse.

RESPONSIBILITIES
International Labour Office (ILO)

Primarily concerned with working conditions, the health and welfare of
workers, the ILO was founded in 1919 to bring governments, employers
and trade unions together for united action in the cause of social justice
and better living conditions everywhere. The ILO is a tripartite
organisation in which member states are represented by government,
employer and employee representatives. The Declaration of Philadelphia, signed on 10th
May 1944, concerns the aims and purposes of the ILO and is incorporated in the ILO
Constitution. The following is taken from the Declaration:
“- labour is not a commodity;
- freedom of expression and association are essential to sustained progress;
- poverty anywhere constitutes a danger to prosperity everywhere;
- all human beings, irrespective of race, creed or sex, have the right to pursue both their material well-
being and their spiritual development in conditions of freedom and dignity, of economic security and
equal opportunity …”
Since drug and alcohol abuse not only affects the working conditions of seafarers but also
their health, the ILO has a responsibility to promote action or cause action to be taken that
will reduce or remove this threat.
World Heath Organisation (WHO)

The WHO is defined by its Constitution as the directing and co-
ordinating authority on international health work and its aim is “the
attainment by all peoples of the highest possible level of health”. The
following are listed among its responsibilities:
to assist governments, upon request, in strengthening
health services;
to establish and maintain such administrative and technical
services as may be required, including epidemiological and
statistical services;
to provide information, council, and assistance in the field
of health;
to promote co-operation among scientific and professional
groups which contribute to the enhancement of health;
to propose international conventions and agreements on
health matters;
to assist in developing an informed public opinion among
all peoples on matters of health.

RESPONSIBILITIES
United Nations Drug Control Programme (UNDCP)

The UNDCP is established to enable the United Nations to focus
and enhance its capacity to address the interrelated issue of
drug control, crime prevention and international terrorism in all its
forms.
Its responsibilities therefore extend to drug control and the prevention of drug abuse through
various means not least of which is the funding of projects and facilitation of training and
education programmes.
International Employers’ & Workers’ Representative Organisations

There are a number of international membership organisations, not affiliated to
governments, with a particular interest in a given industrial sector. In the case of drug and
alcohol abuse prevention, there are number of such organisations although they may not
necessarily have a specific interest in shipping or maritime affairs.
Organisations such as the International Chamber of Shipping (ICS) – an employer

organisation – and the International Shipping Federation (ISF) and International Transport
Federation (ITF) - organisations representing seafarers - are typical examples of employer
and employee organisations. International organisations very often enjoy consultative or
observer status at forums where international regulations, codes of practise, or other rules
are formulated and agreed.
Most international organisations have a responsibility to their membership to uphold the

requirements of their constitution that generally involves protection of an individual’s rights or
privileges, to inform the membership and provide guidance on issues affecting the industry
and individual. With respect to drug and alcohol abuse, there are few, if any, organisations
which deal exclusively with the maritime sector.
Non-Governmental Organisations (NGO’s)

This category includes privately funded organisations rather than those directly financed by
government. Since such organisations usually speak for significant elements of industry or
society that have a vested interest in new legislation, regulations or industry developments.
NGO’s, like international employer or employee representative organisations, are often
afforded observer or consultative status at international conferences and in the drafting of
proposed international instruments. Typically INTERTANKO and OCIMF may be regarded
as an NGO.
Responsibilities and interests of NGO’s are usually defined in their constitution and reflect
the aims expressed by their supporters.

RESPONSIBILITIES
Maritime Training Institutes
T he dangers associated with drug and alcohol abuse must be made evident to all
students and potential students, at maritime training institutes, at the first opportunity. It
is therefore a prime responsibility of all training institutes and other similar training
establishments to ensure a clear message is conveyed to all those attending courses.
In many cases a training establishment will be the first formal point of contact that a potential
seafarer will have, and it is essential that the correct message concerning drug and alcohol
use and abuse be given. Initial impressions, standards and habits adopted in formative
years will remain with an individual throughout the persons working life. It is essential that
training establishments recognise and utilise this period when trainees are at their most
receptive.
Training establishments not only have a duty towards new seafarers but they also have a
responsibility to ensure the same message concerning drug and alcohol abuse is conveyed
to more senior or experienced students. As information concerning the effects of and
incidents involving drug and alcohol abuse becomes more available, students should be
informed accordingly since training is ongoing and not a one-off event.
Schooling of both trainees and mature students must be innovative in that the dangers of
drug and alcohol abuse should be graphically described and clearly supported by facts and
figures. Reasons for legislation as well as the penalties for any infringement should be
discussed at length. The effects on the health as well as safety of the seafarer and fellow
seafarers must be fully explained, and students must not be left under any doubt about the
harmful effects of drug and alcohol abuse.13
13
Training institutes may wish to refer to “A Training Handbook on Prevention of Alcohol and Drug Problems in the Maritime
Sector” produced by the National Maritime Polytechnic, Philippines for the International Labour Organisation, manila, August
1994 (ref AD/GLO/92/585)

RESPONSIBILITIES
Shipowners, Charterers, Ship Managers, Manning Agents, Insurers,

Shipping Communities & Organisations
S hipowners
Some shipowners never see either the ships they own and operate or the crews engaged to
sail such ships. Indeed it is currently common practice and cost effective for some ship
owners to place their ships with ship management companies rather than operate the
vessels themselves. The combination of methods of operating ships available to an owner
make identification of the owner by seafarers on board the ship, in some instances, difficult if
not impossible. Owners registered in one country may employ a management company in
another who may register the ships out to yet a third country and employ crew from two or
more unrelated countries.
Regardless of the above, the owner (or manager, if the vessel is managed) is responsible in
the first instance for ensuring the vessel conforms with the flag state requirements. Even if
no specific drug and alcohol abuse or use restrictions are in force in the flag state (register),
the owner may still have to conform to the regulations in force at various ports. Further, as
indicated in previous sections of this manual, benefits outweigh drawbacks in operating a
drug and alcohol policy or prevention programme even though the owner may be remote
from the actual ship operation. Although there may not be any legally binding requirements,
there are likely to be commercial benefits to consider.
A major cruise ship operator working the Caribbean and U.S. East Coast reported that since
changing the crew with a traditional drinking habit to one where drinking was the norm to one
where drinking is not the norm, problems relating to conforming to foreign country
regulations ceased. The change in policy was taken not only as a means of ensuring
compliance with local regulations but also on economic grounds and concerns for safety.
The same company operates a drug and alcohol prevention programme encouraging
substance abusers to seek rehabilitation.
Even though there may be a cost to operating a drug and alcohol prevention programme
including (replacement, repatriation and) rehabilitation, such costs are likely to be mitigated
or off-set by savings from reduced accidents, delays and detentions.
Charterers
Charterers have a vested interest in ensuring their charter is not interrupted through drug
and alcohol abuse. It is not uncommon to find charter parties contain references to random
testing of a ship’s crew. Owners/managers must be aware of and able to comply with such
requirements.
While the charterer may easily be able to mitigate any costs by passing them to the ship
owner/manager, this may not be sufficient if the cargo being carried has commercial
restrictions covering delivery times and dates.
Ship Managers
Ship managers responsible for crewing of ships must not only take into account the
requirements of the ships’ trading routes and any legal requirements for drug and alcohol
testing/prevention but also the health and safety aspects of implementing an drug and
alcohol prevention programme.

RESPONSIBILITIES
Shipowners, Charterers, Ship Managers, Manning Agents, Insurers,

Shipping Communities & Organisations
Managers are responsible for and must ensure that the policies of the owner or requirements
of the charter party can be accommodated and that the programme is comprehensive. The
manager must also examine the primary prevention mechanisms for pre-sea screening i.e.
ensuring the manning agents from whom crew are engaged are aware of the manager’s
policy and requirements. If no requirements have been specified by the owner or the
charterer, this does not relieve the manager from protecting employees and seafarers
against risks posed by drug and alcohol abuse.
In many countries the manager, as the direct employer, is legally obligated to ensure the
health and safety of employees, including seafarers, is safeguarded and that all risks to
health and safety have been identified and mitigated.
It is the responsibility of the manager to ensure personnel on board are qualified to carried
out the duties imposed which includes ensuring the master, and, where appropriate senior
officers, have the training, education and necessary skills to carry out the company policy.
Manning Agents
In recruiting and offering seafarers to ship owners and managers for employment, manning
agents must ensure such seafarers are medically fit, that they have undergone a medical
examination and that they possess a valid medical certificate. The manning agent should
also ensure the medical certificate has been issued by the competent authority.
Manning agents therefore have a responsibility not only to their clients (the
shipowner/manager) but also to the seafarer. The manning agent may be regarded as a
front line defence against the placement of seafarers with a substance abuse problem.
Insurers
The vast majority of the world’s tonnage is covered by mutual P&I Club (Protection &
Indemnity) insurance. When faced with claims for accidents in which drug and alcohol abuse
is implicated, the claimant’s ability to recover the costs of repair, damage to property, injury
to personnel, pollution, or any other form of damage, will be significantly affected.
Insurers have a vested interest in promoting drug and alcohol abuse prevention since risks
associated with drug and alcohol abuse are well known and more importantly preventable.
Shipping Communities and Shipping Organisations

Many such communities and organisations exist to promote local, national and international
co-operation and understanding between ship owners/managers and shipping lines. Co-
operation may extend to the development and issue of “Codes of Conduct” or “Guidelines” to
ensure a common approach or standard is adopted.14
The responsibilities of shipping communities and organisations clearly include improvement

and advancement of operating standards and the welfare of all employees.
14
A typical indicator of co-operation is the “Guidelines for the Control of Drugs and Alcohol Onboard Ship” published by the Oil
Companies International Marine Forum (OCIMF) – www.ocimf.com.

RESPONSIBILITIES
Shipboard Personnel
S hip Masters
Ship Masters are responsible for the ship and, inter alia, for the health, safety and welfare of
those persons on board. The master must be fully conversant with the company’s policy,
have received the necessary training and possess the skills to fulfil imposed responsibilities.
The responsibilities which the master is expected to fulfil include:

commitment to the programme,
familiarity with the policy, programme and associated
procedures,
monitoring and providing feedback on the programme
through the ship’s safety committee,
monitoring the performance of ship’s officers and seafarers,
identifying drug and alcohol abuse problems,
carrying out disciplinary procedures,
obtaining medical or specialist advice and dealing with
emergency medical situations,
executing testing procedures (where required),
co-operating with foreign port authorities and ensuring
conformance to national or foreign regulations, and
monitoring and controlling consumption.
This list is not a complete list of the functions of the master in respect of the responsibilities
since each policy and programme will differ. The list, however, is intended to demonstrate
that the responsibilities of the master are onerous and the success of a drug and alcohol
abuse prevention programme depends on the master’s involvement and commitment.
Ship Officers
Many of the duties of the master also extend to the ship’s senior officers who directly
supervise and are in contact with the ship’s company on a day-to-day basis. As with the
master, ship’s officers must be aware of the “tell-tale” signs and actions which may point to
drug and alcohol abuse. [Training covering the company policy and procedures and how to
respond when drug and/or alcohol abuse is suspected should be a primary concern of the
owner/manager.] Since ship’s officers are responsible for the work carried out by seafarers,
it follows that their responsibilities extend also to the health and safety aspects of such work
and to the potential affects of a drug and/or alcohol problem.
Seafarers
All seafarers have an obligation and responsibility to the shipowner/manager, to themselves

and to those with whom they work and live on board ship. While it is the responsibility of the
owner/manager to specify the policy, it is the responsibility of each and every seafarer to
follow the specified requirements including any preventive measures.

COMPREHENSIVE SUBSTANCE ABUSE PREVENTION
PROGRAMME
Introduction
A comprehensive, company-wide alcohol and drug abuse programme should cover all
employees including management and address all actions and activities related to
drugs and alcohol. Creating a comprehensive programme for any company engaged in ship
operations is a great challenge that needs to take into account vessel ownership, flag state
registration requirements, management issues, working environment, personnel issues,
cultural variations and cost. The long-term sustainability of a programme will be enhanced
by, and its success may depend on, integration into other health or medical programmes or
on-going safety systems such as a company’s safety and environmental management
system.
Developed by a meeting of experts from governments and employers’ and workers’

organizations, the ILO published in 1996 a ‘Code of Practice for the Management of alcohol-
and drug-related issues in the workplace’ – see Appendix 4. While this publication does not
address the maritime industry specifically, it does provide guidelines on the development
and implementation of a comprehensive programme applicable to all workplaces. The
contents can easily be adapted to suit the requirements of enterprises engaged in maritime
operations.
A comprehensive programme is based on the following principles:

employers have a responsibility to provide a healthy and
safe workplace;15
alcohol and drug problems can be serious and chronic in
nature, not just isolated crises that require extra-ordinary
and non-routine responses;
employees have civil liberties and rights to privacy and
confidentiality which must be safeguarded; and
employees have a responsibility to carry out their duties with
due regard to health and safety matters.
The existence of comprehensive alcohol and drug abuse programmes does not necessarily
mean that problems exist. Rather, that activities and programmes are being implemented to
promote health and safety and to prevent harm and the occurrence of hazardous situations.
Successful prevention efforts are “pro-active” rather than “re-active”.
The general sequence of events for determining and implementing a drug and alcohol abuse
prevention programme may be summarised as shown in the following flow chart.
Management should not underestimate the time required to develop and implement drug
and alcohol prevention policies and programmes because of the timeframe involved.
Commitment to a programme by both management and the personnel selected to drive the
programme is essential.
15
"The term 'health' in relation to work, indicates not merely the absence of disease or infirmity; it also includes the physical
and mental elements affecting health which are indirectly related to safety and hygiene at work." ILO Occupational Safety and
Health Convention (no. 155), 1981, Article 3(e)

PROGRAMME
Introduction
General sequence of events flow chart
Influencing factors:
Domestic / Foreign legislation. Directors/Top

Performance and Productivity.
Management Decision
Experiences with drug and
alcohol problems.
Charter party requirements.
Owner requirements.
ISM Code.
Other.
Support required:
Agreement & commitment to policy and

programme. Management Support
Adoption of new values for all employees
Visibility and association with policy and
programme.
Resources to develop/implement
programme.
Components to address:
Identify Company needs. Programme

Develop appropriate strategy and Development
policy statement.
Determine requirements for staff
involvement.
Policy awareness & training
initiatives – Management, Staff,
Seafarers.
Drug & Alcohol problem
identification.
Crisis Management.
Information & Education
Initiatives.
Work environment improvement.
Counselling, Treatment & Implementation
Rehabilitation.
Drug & Alcohol testing.
Programme evaluation criteria.
Evaluation, Review
& Adjustment

PROGRAMME
Management Support
S upport for a new alcohol and drug abuse prevention programme has to come from top
management irrespective where in the organisation the need is identified. An alcohol
and drug abuse prevention programme designed to promote the health and safety of
employees will not succeed without management and senior shore and sea-going officers’
commitment to the programme. Employees must also accept the need to change as they
learn new ways of thinking and doing.
With a strong top-level mandate a programme will:
be taken more seriously,

be implemented more quickly and effectively, and
have more impact.
Management must be committed to sustaining the comprehensive programme. Policy may

be developed and information, education, and training activities may be conducted, yet
immediate change may not be evident. Swift delivery and promulgation of information is not
enough; change takes time, needs reinforcement and needs the active involvement and
participation of all employees ashore and afloat - from management to masters, officers and
crew. Ultimately, the measure of a successful programme is a change in attitudes and
actions.
The long-term success and viability of an alcohol and drug abuse prevention programme are
directly related to three conditions:
agreement and commitment at all levels of the organization;

integration into other health and safety, welfare, medical
programmes or management systems so that the
programme becomes routine; and
currency and relevance of the information being used.
Commitment by management should not be confined to signatures and the circulation of
documents but they must visibly support the programme and active in its development,
implementation and on-going application.

PROGRAMME
Planning the Programme
T he planning of a comprehensive programme begins the moment the first questions are
asked concerning what to do and how to do it. A planning committee provides the most
effective means of sharing information, eliciting diverse opinions, allowing for participatory
decision-making, setting of objectives and implementing various events and programmes.
The active involvement of staff and employee representatives is essential. A diverse and
comprehensive membership on the planning committee is the key to not only the initial
acceptance of the programme but also its long-term sustainability. The committee should
include as many personnel as possible: director(s), marine manager, technical
superintendent, senior sea-going master/officer(s), trade union representative(s), social
worker or welfare officer, safety officer, personnel officer, occupational health nurse, medical
officer (someone who has an understanding of the related technical issues), community
support personnel. The size and composition of a company’s committee will obviously need
to be appropriate to the size and structure of an individual company.
The fundamental tasks of the planning committee are to:

identify and review the needs of the company and
requirements of relevant laws and regulations;
develop a strategy and policy statement;
determine and subsequently review comprehensive
programme elements;
develop awareness, education and training initiatives (to
include the committee members);
develop an implementation, promotion and evaluation plan
and timetable;
designate staff and personnel to be involved in the
development and implementation process; and
monitor all activities and progress and prepare regular
reports for the Board 16.
If a formal planning committee is not feasible, as may be the case in smaller companies,
responsibility for developing and implementing a programme may rest directly with the owner
or a key manager. However, every effort should still be made to involve as many key
personnel as possible.
It should be remembered that a programme will gain more

support if representatives from all levels of the organisation are
involved or are consulted. In this regard the use of email and
the ability to have almost instantaneous communication with
shipboard personnel should not be overlooked.
16
Companies may consider installing “free-phone numbers” or a “hot-line” that allow individuals with problems to anonymously
make enquiries about the facilities available or for fellow seafarers to inform management of problems that may exist.

PROGRAMME
Work Environment Improvement
A comprehensive programme needs to address the impact of the work environment on

the use of drugs or alcohol. Studies on environmental factors which increase stress
and anxiety and could, in turn, lead to increased use of drugs and alcohol, have identified
the following contributing factors:
long working hours,
separation from family and friends,
sub-standard manning levels,
peer pressure,
precarious employment conditions and the possibility of
unemployment,
monotonous work,
shift work and night work,
long ocean voyages, and
uncomfortable or hazardous physical living and working
conditions.
It must be appreciated that additional stress can result from the fact that, for ship’s officers
and seafarers, the workplace is also their home.
The presence and severity of such factors should be reviewed and efforts undertaken to
ameliorate such conditions to the degree possible. Factors that improve shipboard life such
as recreational and social activities, education opportunities and regular contact with family
and home communities should be considered. Consultations with seafarers’ representatives
and/or individual seafarers may also result in additional actions being identified that could be
taken to lessen stress and anxiety.
Companies may wish to take into consideration assistance or services that can be provided
from external sources such as those offered by the International Christian Maritime
Association or the International Sports Committee for Seafarers (ISCS)(see Appendix 10).

PROGRAMME
P reamble
The components of a comprehensive drug and alcohol abuse prevention programme in the
maritime industry are:
a written policy statement,

policy awareness,
training programmes for key personnel,
problem identification and intervention,
crisis management,
employee education,
work environment improvements,
counselling, treatment and rehabilitation,
drug and alcohol testing (as appropriate), and
programme evaluation.
These components should be considered essential and each company/organisation will, as

they pursue the objectives of establishing and refining a drug and alcohol abuse prevention
programme, identify requirements particular to their own circumstances. Components should
suit the environment. Smaller companies and organisations may not be able to implement
all components initially but should strive to include them step by step.
Management, in developing a programme, will discover that only commitment in terms of

time and effort put into the task will result in a positive outcome. Sustaining the programme
to achieve a change of attitude in dealing with drug and alcohol problems without drama
should be the goal. Management should not underestimate the influence and contribution of
employees – and seafarers - participating in the development and implementation process
as drug and alcohol problems are not confined to positions of authority or relative
occupation.

PROGRAMME
P olicy Statement
The substance abuse policy is the written description of the company’s position on the use of
alcohol, illicit drugs and medications both on board and on shore. The policy should:
explain why the company has implemented an alcohol and
drug programme,
describe the company’s prevention measures and
expectations of its employees, and
specify the consequences of policy violations.
Tailoring it to the needs of the specific company and its particular operations the involvement
of seafarer representatives in policy development is essential. By incorporating seafarer
needs, concerns and suggestions, policy credibility and acceptance are increased.
The policy statement, signed or endorsed by top management, needs to be communicated

to each individual in the company. This is best done by holding a meeting to present and
answer questions about the policy and to provide each employee with a copy of the policy
document before and as near as possible to the implementation date. For shipboard
personnel, ship managers/superintendents can act as the representative of management
and convene meetings to ensure all seafarers are afforded the same opportunity to ask
questions to allay any misgivings.
At a minimum, the policy statement should address the following:
Rules concerning the Alcohol is legal in many countries but definitions of accepted
consumption of alcohol on use vary. The rules for on board use should be clear,
board ship. concise, and unambiguous. Some companies have a total
ban on alcohol consumption on board whereas others may
have an alcohol misuse policy which allows limited
consumption but does not tolerate intoxication or impaired
behaviour.
Restrictions concerning A major safety consideration, often ignored, is the use of

consumption of alcohol alcohol or illicit or medications while on shore. Such use
prior to coming on duty17. may become the company's business when it results in
impaired performance. For officers and other seafarers
some companies specify the number of hours prior to
boarding during which alcohol may not be consumed.
Use of medications which
may interfere with work
The use of over-the-counter or prescription medications
should be addressed. It is important to verify that the
performance.
medication is being used appropriately to treat a legitimate
medical condition and will not constitute a danger to the
employee, co-workers, seafarers or the ship.
17
The STCW Code recommends prohibiting the consumption of alcohol within 4 hours prior to serving as a member of a watch.

PROGRAMME
Use of illicit drugs. Like alcohol and medications, the use of illicit drugs must be
covered in the policy as they affect motor skills and good
judgement. In addition, the very fact that these drugs are
unlawful in many countries can create a whole different set
of problems. Many companies have separate policies
regarding illicit drug use, and seafarers need to be aware
that even occasional illicit drug use may jeopardise their
Consequences of violating The company needs to clearly indicate the consequences to

drug and alcohol use rules. employees of violating the drug and alcohol policy. Many
shipowners have a single strike policy with regard to illicit
drug use but may have a more tolerant attitude towards
alcohol. If a distinction is made, it should be clearly stated in
the policy.
Consequences of illicit The possession of illicit drugs is a legal violation in many

drug possession or countries. Drug trafficking is treated as a criminal activity in
drug trafficking. almost all countries and can, in some, result in the death
penalty. For example, the Malaysian Dangerous Drugs Act
regulates the importation, exportation, manufacture, sale
and use of dangerous drugs. Depending on the amount of
drugs used, possessed or involved in trafficking, penalties
may include fines, whippings, life imprisonment, or death.
(DeLancey, M., and Hannan, D., 1994, p205).
In view of the potential consequences for the vessel crew
and the operating company, any activities related to drug
trafficking should be brought to the attention of the
appropriate official within the company. For those caught
trafficking in drugs, termination of employment and
repatriation is the usual result.
Seafarers with drug and The substance abuse policy needs to indicate how the
alcohol problems. company will respond to seafarers with drug or alcohol
problems. Defining a drug or alcohol problem in terms of
work performance will lessen both the anxiety of the person
responsible for the individual and the suspicion of the
employee.
Rehabilitation and
re-employment.
Issues surrounding the rehabilitation and re-employment of
employees/seafarers who have substance abuse problems
involve complex questions of responsibility and, in some
cases, legal requirements or restrictions. Current information
on national laws of the flag State should be obtained and
studied. Organizations, which provide assistance or provide
treatment and rehabilitation to officers and seafarers, exist in
some major ports and localities. However, participation and
eligibility may be limited to certain groups.

PROGRAMME
In addition, following successful treatment and rehabilitation,

eligibility for re-employment needs to be addressed. When
treatment and rehabilitation services are available,
consequences for seafarers not choosing to participate or
who do not successfully complete the programmes should
be clearly stated (see Counselling, Treatment &
Rehabilitation).
Alcohol and drug testing The issue of alcohol and drug testing is very sensitive in all
work environments including the maritime industry. Some
countries require testing for maritime employees in safety
sensitive jobs. Others limit or prohibit testing.
If drug and/or alcohol testing are to form part of a company’s

programme, the policy statement should clearly specify who
will be tested, under what circumstances testing will be
conducted, for what drugs testing will be done, the
frequency of testing, the kinds of tests, the procedures to be
used, and the consequences of a positive test.

PROGRAMME
P olicy Awareness
All employees and seafarers should be introduced to and made familiar with the company
drug and alcohol abuse policy at training sessions. Training sessions should be conducted
by a representative of management (who is well versed on all the provisions of the policy
and drug and alcohol prevention programme), through managers carrying out training
sessions within their respective departments and by senior personnel visiting ships and, if at
all possible, an alcohol and drug expert. Companies should provide a hard copy of the
policy to ensure each employee is fully aware of the requirements. In addition to receiving a
copy of the policy, it may be helpful for employees to meet with management to discuss and
ask questions concerning the policy on an individual basis.
Training sessions should be planned and co-ordinated so as to ensure the maximum

numbers of employees are reached in the shortest possible time span. Whenever possible,
training and educating shore and sea-going staff should be conducted concurrently when
implementing a programme. Ship managers/superintendents should consider holding
training sessions during their routine visits to ships. Alternatively, Masters and/or Senior
Officers may be called into the shore office to receive training so that they will be able to
carry out training of the crew on the ships to which they have been assigned.
New employees or uninitiated seafarers should be introduced to and instructed in the

company drug and alcohol abuse policy as part of the induction and familiarisation process.
For the company policy and programme to be successful, it is essential to provide all
employees with alcohol- and drug-related information and to plan for and implement on-
going education initiatives.
Topics to be covered in training sessions should include the following:

the company policy and the reasons why the company has a
drug and alcohol prevention and assistance programme;
rules concerning the use of alcohol and drugs on or off duty
and the consequences of violating the rules;
if drug or alcohol testing is part of the company programme,
the testing procedures including the procedures for assuring
accuracy and confidentiality;
the consequences of a positive test
how to get assistance for a drug or alcohol problem
including assistance offered by the company, if any, and
assistance available through non-company resources;
the company’s position on re-employment after successful
completion of treatment and rehabilitation; and
penalties for drug smuggling and trafficking.

PROGRAMME
T raining Programmes for Management & Senior Ship’s Officers

Managers and senior ship’s officers are pivotal to the success of any drug and alcohol abuse
prevention programme. Top management must be sure that those selected for training
understand the policy and are able to explain it to subordinates. Being in direct contact with
the workers, managers and senior ship’s officers should be able to detect performance
problems that may indicate a drug or alcohol related problem and take action when
necessary.
Training must be designed and tailored to meet the specific and on-going needs of the
company. In addition to the kind of information and education provided, key personnel need
additional training to help them meet their responsibilities for implementing the policy and
ensuing programme. They should be given more in-depth training in areas such as:
company policy and documented procedures;

the impact of drugs and alcohol on company operations,
productivity and employee health and safety;
problem identification and intervention;
physiological and psychological aspects of drug and alcohol
dependence including the potential for contracting
HIV/AIDS;
background on drug and alcohol testing;
methods of detecting drug and alcohol use (see also
Appendix 5);
national and international laws, conventions, regulations on
drug possession, use and trafficking; and
references contained in ship’s medical manuals (crisis
management).
It may be necessary to engage the services of an expert outside the company to conduct the
non-management topics in the training sessions for managers and senior ship’s officers.
Top management must also realise that

training is not a one-time event and that
refresher training may be required not
only to update those already trained but
also to train personnel which may have
been engaged since the previous
training was carried out. Such review
should normally come within the scope
of the review of the management
system.

PROGRAMME
P roblem Identification and Intervention

Senior company officers and ship’s masters and officers have a legitimate right to initiate
corrective actions when an individual’s performance declines. If it appears that a personal
problem - including the possibility of substance abuse - may be affecting performance, the
use of constructive confrontation is one of the most effective ways known to persuade an
employee to seek help. However, the supervising officer’s responsibility for monitoring job
performance and counselling does not extend to diagnosing and resolving a personal
problem.
As the result of training, management, supervisors and senior officers on board the
company’s vessels should be able to carry out the following functions:
develop, document and communicate objective job
performance standards;
observe and document incidents and examples of
unsatisfactory work performance or behaviour;
recognise symptoms of drug or alcohol abuse,
discuss with employees/seafarers work related problems,
determine whether equipment, lack of training or working
condition are affecting performance, and work with the
employee/seafarer to alleviate any identified problem to the
degree possible;
set appropriate time limits for improvement of performance
and inform those involved of the consequences of continued
poor performance according to company policy;
inform the employee of the availability of assistance for
personal problems and encourage the use of the resources,
emphasising that if the problem is personal, it is the
employees/seafarers responsibility to take appropriate
action;
initiate the alcohol and drug testing procedures if required by
the company’s policy, and
help individuals re-enter the workplace or return to sea-
going employment after treatment and rehabilitation.
Training to identify drug and alcohol abuse problems and how to intervene may take several
forms including attending seminars and lectures, the use of films, videotapes, or printed
material. In addition, those trained, whether they are on shore or on board, should have
direct access to professional personnel who can provide assistance in identifying problems
and conducting interventions. A company official in concert with a substance abuse
professional experienced in training should conduct training.

PROGRAMME
C risis Management
The policy should encourage individuals to voluntarily seek assistance and should provide
for the confidentiality and anonymity of the individual to the degree possible.
When crisis situation involving alcohol and/or drugs occurs it needs to be handled in the
same way as any other medical condition. Withdrawal from drugs and alcohol can result in
rapid development of serious medical problems. In the case of withdrawal from alcohol this
can result in death. In the event of a crisis on board, it is critical that ship’s officers have
direct access to specialised medical personnel trained in dealing with alcohol and drug
issues.18 It is also important that they have available on board appropriate medical supplies
and equipment and are trained to use them in response to the specific guidance received
from qualified medical personnel.
Senior Managers and ship’s officers undergoing training should be trained to recognise
drug and alcohol problems and to consult with specialised medical personnel ashore.
Ship’s masters and senior officers should also be conversant and aware of the contents of
the respective ship’s medical manual.
18
Companies may wish to consider the emergency services provided by the International Radio-Medical Centre in Rome – see
Appendix 10.

PROGRAMME
E mployee Education
To have a successful drug and alcohol prevention programme, it is essential to provide all
employees with alcohol- and drug-related information and to implement on-going education
initiatives. Information that may be of assistance would include self-test questionnaires19,
brochures describing drugs and alcohol and the various physiological and psychological
effects of these substances and guides that allow employees to quantitatively determine the
affects of alcohol on their health.
A number of key factors determine the long-term impact of an information and education
programme:
the degree of commitment by top management, senior
managers, masters and officers and seafarer
representatives;
the duration and scale of an overall campaign;
the number of officers and seafarers reached;
the credibility and relevance of the key messages;
the repetition of messages;
the use of a variety of methods of communication;
the availability of programme and self-help material; and
campaign feedback/progress reviews.
Topics to be covered in an information and education initiative should include the following:
basic facts on drugs and alcohol and their effects on health;
how misuse of drugs and alcohol impact on company
operations, productivity, employee health and safety;
how drugs and alcohol affect the family, on board work
relationships and the community as a whole;
the use of self-assessment tools to help individuals identify
the status of their drug and alcohol use;
the relationships between drug and alcohol use and
HIV/AIDS and other diseases;
the dangers and penalties involved in drug trafficking;
special considerations on crossing national frontiers; and
examples of accidents that have occurred involving drug and
alcohol use.
19
Various self-test questionnaires are available. Two examples of such checks employees can carry out include CAGE and
MAST (Michigan Alcoholism Screening Test) both may be found at www.alcoweb.com

PROGRAMME
Depending on the ports of call, information concerning drug

and alcohol laws and regulations will need to be provided to
the officers and crew. Company agents or offices in the
countries to be visited can provide such information.
Education on coping skills such as stress reduction and interpersonal communication could
also be included as part of the education initiatives.
There are many different audiences for information and education initiatives: company
executives and managers, shore personnel, ship’s officers and seafarers. Each group must
be considered and accommodated in terms of;
language;
literacy;
the level of knowledge concerning drug and alcohol issues
that participants bring to the sessions;
the most effective method(s) of learning (e.g. lecture,
discussion, role playing, programmed learning, etc); and
a participant’s attention span.
Because of the technical aspects of the topics, the education sessions are best developed
and conducted by a substance abuse specialist who has a background in training
methodology. Obviously this would mean that education sessions are best conducted on
shore during orientation sessions or in maritime colleges or other appropriate institutions.
The practical difficulties and cost considerations of providing the same level of education to
seafarers are significant but must, nonetheless, be overcome if a programme is to be
effective.
In determining audiences and/or delegates, company management should check the training
records of employees to determine whether some have already received similar training.
Information can also be made

available through the use of
posters, leaflets, videotapes and
computer-based learning
programmes while at sea.
However, access to a substance
abuse professional should always
be provided so office workers and
seafarers alike can ask questions
and discuss individual problems.
Full consideration should be given
to distance learning and training
utilising email links and the
internet that are becoming more
available, especially to seafarers.

PROGRAMME
C ounselling, Treatment and Rehabilitation

It is important that individuals with drug or alcohol problems have access to counselling,
treatment and rehabilitation services. In fact, one of the most effective tools for persuading
individuals to seek treatment is the possibility of job loss and consequent loss of earning
frequently used to pay for their alcohol and drugs.
The Inter-Regional Meeting of Experts in Geneva in 1992 identified four key concepts
inherent in the establishment of company supported rehabilitation programmes:
company policies should recognise that drug and alcohol
dependency are treatable conditions, provided that the
individual fully co-operates;
access to counselling, treatment including relapse
prevention therapy, and rehabilitation should be facilitated
by the employer;
counselling, treatment including relapse prevention therapy,
and rehabilitation may be provided by the company through
a specialised unit separate from supervisory structures or by
public or private agencies unconnected with the employer;
and
upon successful completion of a rehabilitation programme or
participation in a recognised continuing recovery
programme, maritime workers should be entitled to
employment or re-employment in the maritime industry.
Because of the multiple jurisdictions that may come into play, there will be many exceptions
to the acceptance of the above concepts. However, this should not adversely influence
employers from giving serious consideration to implementing a counselling, treatment and
rehabilitation scheme.
One of the biggest incentives to seeking help is for individuals to know that employment will
not be automatically terminated if they voluntarily seek assistance. Depending on the
jurisdiction, companies may be able to re-employ workers who have successfully completed
rehabilitation. Employers should consider implementing specific follow-up actions including
probationary periods and routine testing of the individual. In some cases, however, it may
not be possible to place the rehabilitated individual in or restored to a safety sensitive
position.
An obstacle for many individuals is not knowing where or how to seek help. While many
shipping companies have formal programmes to provide assistance to employees at their
headquarters locations, the availability of assistance in all countries and all ports is not so
easily provided. Smaller shipping companies may not have resources to unilaterally provide
assistance programmes but such limiting factors should not prevent initiatives being taken.
Shipping company communities should, through their various associations, lobby and seek
assistance from their respective flag state administrations. The latter, in turn, may seek
assistance from other flag state administrations.

PROGRAMME
The International Committee on Seafarers’ Welfare (ICSW), a clearinghouse for information,

has developed a new publication: ‘International Directory of Port Welfare Services’. This
brochure may prove useful to companies and employees in seeking out relevant sources of
information covering counselling, treatment and rehabilitation (see Appendix 10).
Seafarers should also be permitted the option of making use of programmes implemented by
various organisations concerned with the welfare of seafarers. Information on these
programmes can be obtained from the International Christian Maritime Association (ICMA)
and the ICSW (see Appendix 10).
Depending on company policy, several options can be exercised when personnel test
positive for drugs or alcohol. These options have been outlined in the ITF ‘Policy on Drug
and Alcohol Abuse’ as well as in the ‘INTERTANKO Guidelines for Tanker Companies Drug
and Alcohol Policies’ (see Appendix 6).
Because not all recovering individuals remain “clean and sober”, some countries prohibit
their future employment in safety-sensitive positions.

PROGRAMME
D rug and Alcohol Testing

Drug and alcohol testing in the workplace, despite its increased usage since the late 1980s,
remains a sensitive issue with much disagreement among countries, employers and workers
concerning if and how testing should be carried out. There are also moral and ethical issues
that must be taken into consideration in developing and operating a drug and alcohol testing
programme.
The policy decision to include a drug and alcohol testing programme must be fully discussed
by a company prior to embarking on the questions concerning the testing programme itself.
In considering whether to include drug and alcohol testing, companies should be aware that
not all countries require testing to be carried out nor are there common or standard
procedures that satisfy those countries which demand such a procedure to be undertaken.
In view of the variations of standards companies should establish the legal requirements of
those countries likely to be visited by their ships.
Companies should thoroughly investigate the reasons why testing should form part of their
prevention programme. The company should consider any legal requirements/restrictions,
will a testing procedure act as a deterrent, is there evidence that problem exists or are there
other reasons that necessitate the testing for drug and alcohol use.
There are no internationally agreed conventions, laws, regulations or procedures covering

testing for drugs and alcohol. Some countries permit while others prohibit testing with
requirements varying between countries. Companies should therefore identify the
requirements of those countries where business is being carried out or ships visit and
develop a programme that satisfies the most stringent standards.
In respect of carrying out tests, companies might wish to consult: ‘Guiding Principles on Drug
and Alcohol Testing Procedures for Worldwide Application in the Maritime Industry
(Appendix 2) that were developed by a Joint ILO/WHO Committee on the Health of
Seafarers and published by the ILO in 1993. The principles contained therein should form
the basis of any testing programme. In addition, Drug and Alcohol Testing in the Workplace:
Report of the interregional tripartite experts meeting which was held in May 1993 in
Honefoss, Norway provides much more detailed information which, although not targeted to
the maritime industry, provides a broad spectrum of the issues surrounding testing. Many
companies have requested and received approval of their testing procedures from foreign
countries where crewing agents and seafarers are domiciled, i.e. the Philippines.
Testing for alcohol and drugs is not a simple process. There are many questions on
technical issues which must be addressed in the process of implementing and operating a
testing programme. For example:
who will be tested;

for what drugs will testing be done;
frequency of testing;
when will testing be carried out;

PROGRAMME
the specific tests to be used and procedures to be

followed;
what cut-off levels will be used;
actions to be taken in response to a positive test, and
precautions to protect privacy and confidentiality.
Companies would be well advised to seek professional advice and assistance in developing
their testing programmes to protect the rights and interests of both workers and employers.
It is essential to keep in mind that drug and alcohol testing alone does not constitute a
workplace substance abuse programme. Testing is one of several useful tools that can
assist in the prevention and identification of substance abuse, but it should be undertaken
only as part of a comprehensive programme.

PROGRAMME
P rogramme Evaluation
Any substance abuse programme should become an integral element of a company’s
management system. Periodically therefore, it is good idea to review the drug and alcohol
abuse prevention programme to determine whether or not it is fulfilling its intended purpose.
If feedback and information (obtained by the use of management system evaluation tools)
indicate that adjustments are needed, appropriate modifications can be made. Companies
with certified ISM Code or ISO 9000 based management systems will be familiar with
evaluation and review procedures, in particular review of the procedure through internal
audit and the management review process.
Areas for review and evaluation include:

compliance with national laws and regulations: laws and
regulations which change continually;
the introduction of new or amended education and training
materials;
intervention methodologies;
testing protocols;
treatment and rehabilitation methodologies and services;
employees use of programmes provided by the company,
and
possible contribution of programme to improved individual
health, reduced accident and absenteeism rates and
increased productivity or changes in other related indicators.
Evaluation methodologies range from rigorous to informal. The approach to be used by any
company will depend on the resources available, the perception of programme’s
effectiveness and, perhaps, the need to develop cost-benefit information. In all cases,
feedback from top management (including human resource management, medical and
safety and health personnel), masters/officers and seafarers and their representatives
should be solicited.
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PREFACE

In 1993 the International Maritime Organization adopted the International Safety

Drug & Alcohol Abuse Prevention Programmes Page iii

of these changes and the replies to an assessment questionnaire distributed to recipients of

Page iv Drug & Alcohol Abuse Prevention Programmes

Health and Safety 2

Drug & Alcohol Abuse Prevention Programmes Page v

Components of a Prevention Programme

Page vi Drug & Alcohol Abuse Prevention Programmes

Drugs & Alcohol in the Workplace

 Alcoholism causes 500 million lost workdays each year. 1

 It is estimated that 10-30% of the accidents at work are

 The cost of reduced labour productivity for most

Drug & Alcohol Abuse Prevention Programmes Page 1

Drugs & Alcohol in the Maritime Industry

H ealth and Safety

Variables unique to the

Page 2 Drug & Alcohol Abuse Prevention Programmes

Drugs & Alcohol in the Maritime Industry

P erformance & Productivity

Substance abuse undoubtedly contributes to lower performance and productivity. A study

1st test: before any alcohol ingestion,

There is every reason to believe these findings apply equally to seafarers!

Drug & Alcohol

Drug & Alcohol Abuse Prevention Programmes Page 3

Drugs & Alcohol in the Maritime Industry

U.S.A. The United States regulations require surface, air and

United Kingdom The United Kingdom’s Department of Transport has passed

Page 4 Drug & Alcohol Abuse Prevention Programmes

Drugs & Alcohol in the Maritime Industry

Norway Policies and prevention programmes to control alcohol and

The Merchant Shipping Act of 1995 makes it a criminal

The Philippines The Standard Employment Contract (SEC),9 sanctioned by

Drug & Alcohol Abuse Prevention Programmes Page 5

Drugs & Alcohol in the Maritime Industry

Page 6 Drug & Alcohol Abuse Prevention Programmes

Responsibilities of government commence with formulation, adoption and promulgation of

Promoting Prevention: Health checks and medical examinations: ensuring checks

Setting safety limits: prescription of a maximum blood

Drug & Alcohol Abuse Prevention Programmes Page 7

Provision of rehabilitation services: provide rehabilitation

Non-discrimination: develop and introduce legislation that

Declaring drug and alcohol abuse to be a medical

Focal point: to act as a focal point for industry and to

The responsibilities of government should go further than national legislation or other

Organisations / Personnel with Drug & Alcohol

Administration M anning Seafarers’

Ship M anager Training International Trade & Welfare

Page 8 Drug & Alcohol Abuse Prevention Programmes

International Organisations & Institutions

International Maritime Organisation

Drug & Alcohol Abuse Prevention Programmes Page 9

International Organisations & Institutions

International Labour Office (ILO)

“- labour is not a commodity;

- freedom of expression and association are essential to sustained progress;

- poverty anywhere constitutes a danger to prosperity everywhere;

World Heath Organisation (WHO)

Page 10 Drug & Alcohol Abuse Prevention Programmes

International Organisations & Institutions

United Nations Drug Control Programme (UNDCP)

International Employers’ & Workers’ Representative Organisations

Organisations such as the International Chamber of Shipping (ICS) – an employer

ALCOHOL&DRUGS

ALCOHOL&DRUGS

Alcoholism causes 500 million lost workdays each year. 1

It is estimated that 10-30% of the accidents at work are

The cost of reduced labour productivity for most

Domestic / Foreign legislation. Directors/Top

Agreement & commitment to policy and

Identify Company needs. Programme

be taken more seriously,

agreement and commitment at all levels of the organization;

a written policy statement,

Restrictions concerning A major safety consideration, often ignored, is the use of

Consequences of violating The company needs to clearly indicate the consequences to

Consequences of illicit The possession of illicit drugs is a legal violation in many

company policy and documented procedures;